Loss of Biodiversity By: Dardan Seci, Miranda Tyson, Ziqi Xu, and Ryan Jaipersaud.
GOVERNMENT BUREAUCRACIES AS IMPEDIMENTS TO FISH CONSERVATION DARDAN GOGA GABRIEL COURCHESNE...
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Transcript of GOVERNMENT BUREAUCRACIES AS IMPEDIMENTS TO FISH CONSERVATION DARDAN GOGA GABRIEL COURCHESNE...
GOVERNMENT BUREAUCRACIES AS IMPEDIMENTS TO FISH CONSERVATION
DARDAN GOGA GABRIEL COURCHESNE NORMANDIN CHRISTINE LATOS
OUTLINE
Background of fisheries organizations
Structural Organization of DFO
Paper objectives
Case Studies
Cod Collapse
Nechako River agreement
Cohen Commission
Criticisms of the paper
Hutching’s recommendations
Current State of AffairsHinch 2015
BACKGROUND : Agencies
FRB - Fisheries Research Board (replaced by DFO in
1977)
DFO - Fisheries and Oceans Canada
AGAC - Atlantic Ground-fish Advisory Committee
CAFSAC - Canadian Atlantic Fisheries Scientific
Advisory Committee
NAFO - North American Fisheries Organization
http://static.theglobeandmail.ca/6a3/migration_catalog/article3974937.ece/ALTERNATES/w620/fishfarm_jpeg_760061a.jpeg
STRUCTURAL ORGANIZATION OF DFO
Lane, D.E., and R.L. Stephenson. 2000.
DFO
Guided by 5 pieces of legislation: Oceans Act Fisheries Act Species at Risk Act Coastal Fisheries Protection Act Canada Shipping Act
The Department’s values are based on the federal public sector values of:
Respect for democracy Respect for people Integrity Stewardship Excellence
http://www.dfo-mpo.gc.ca/science/Publications/annualreport-rapportannuel/ar-ra0506/images/img1.gif
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DFO
Events resulting in scrutiny as outlined by Hutchings et al. 1997
1.Extension of Canada’s fisheries jurisdiction to 200 miles in 1977.
Placed responsibility for managing eastern Canada’s ground fish fishers with the
federal government.
2.The reduction of flows of British Columbia’s Nechako River effected by the ALCAN
Legal actions by DFO over concerns in salmon productivity due to reduced flow
Much-criticized-out-of-court settlement on flow regimes reached in 1987
BUDGET ALLOCATION
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SCIENCE AND MANAGEMENTFisheries science - develops information on the biology and population dynamics of exploited fishes, upon which rational management can be based.
Uncertainties and different interpretations associated with the quality of fisheries data analysis and interpretations.
Science documents have not been developed in close linkage with analyses of policy options
Fisheries Management- consists of establishing and implementing regulations intended to maintain fish abundance at or above conservation targets
Uncertainties in data and alternative hypotheses are often not evident in the science documents which management bases its decisions
Stock assessments often only provide a sigle perception of health of a stock
PAPER OBJECTIVESTo examine :
1. The means by which fisheries science is conducted, interpreted, and publicly presented by the DFO
2. Non-scientific influences on the dissemination of information pertaining to species biology, ecology, and abundance of fish
3. The need for public scrutiny of the influence of senior-level bureaucrats in the management of Canadas natural resources.�
4. Government-administered science in Canada, and its potential for bureaucratic and political interference
CASE STUDY : COD COLLAPSE
Cod fishery has been closed since 1992 except for for small localized fisheries
In 2007, NFLD/Labrador stock listed as endangered by COSEWIC
Other cod stocks listed as threatened or special concern
Primarily caused by growth overfishing as a result of : Tragedy of the commons overcapitalization the ratchet effect
… the collapse of a fishery
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CASE STUDY : COD COLLAPSE CONTOct 1986 Meeting called at the DFO to consider reasons for discrepancy in cod availability to the inshore and offshore fisheries
“Not only is the train of thought inconsistent but quite often there are no passengers on it” - Dr. George Winters
stock had been overestimated since 1977
CAFSAC’s Response and Research recommendations “ the level of uncertainty in these estimates is not unusual in comparison with the assessment of other cod stocks in north America”
1. Quantify effort and catch rates in the inshore and offshore fisheries2. Assess the validity of the assumptions of the multiplicative model3. Identify potential biases in the research survey data4. Quantify discarding rates and include them in the assessment process5. Determine the fishing selectivity of each major gear type 11
CASE STUDY : COD COLLAPSE CONT
CAFSAC’s 1986 recommendations that had yet to be addressed by 1995 included:
1. A comprehensive analysis of the spatial structure of cod as reflected by survey data
2. The documentation of and errors associated with catch discards from all gear types and an evaluation of the
effects of discarding on abundance estimates,
3. The determination of age- and size-specific vulnerabilities of cod to different fishing gear
Bias in stock status reports and manipulation of public perception
It is expected that sock status report should:
1. Balanced treatment of scientific research that has investigated the reasons for the stock collapses
2. To identify all relevant scientific documents upon which this research is based
CASE STUDY : COD COLLAPSE CONTLegitimization of bureaucracy: the portrayal of “science” as science
Inclusion of fisheries science within a political body can permit analyses presented by that body to be portrayed as being based on science thereby legitimizing govt policy and departmental science
Non-science influences on fisheries research incompatible with normal scientific inquiry included
Govt denunciation of independent work Misrepresentation of alternative hypotheses Interference in scientific conclusions Disciplining of scientists who communicate publicly the results of peer-reviewed
research Misrepresentation of the scientific basis of public reports and government
statements
CASE STUDY: NECHAKO SETTLEMENT
Nechako river original flow: 201 m3s-1
1951: Alcan starts construction of project. Dam built on river Tunnels built in the coast
mountains Result: river flow reduced by
40-50% (1954-1978)
http://blog.wwf.ca/blog/2013/10/09/forgotten-giants-nechako-river/
NECHAKO SETTLEMENT
http://www.ec.gc.ca/inre-nwri/default.asp?lang=En&n=0CD66675-1&offset=6&toc=show
NECHAKO SETTLEMENT
http://www.salmonguy.org/wp-content/uploads/2011/01/Slide1.jpg
http://www.salmonguy.org/wp-content/uploads/2011/01/Slide1.jpg
NECHAKO SETTLEMENT
By 1979: flow at 10% 1980: DFO obtains injunction which forces
a release of at least 33% of original flow 1985: ALCAN petitions Supreme Court
Trials set for March 1987 1986: Workshops are held within DFO to
decide on which flow rate is acceptable for the Nechako river salmonid population
1987: BC government presses for out of court settlement
DFO agrees September 1987: Out of court settlement
concluded Flow decided at 26.5 m3s-1
http://www.tripadvisor.ca/Hotel_Review-g154938-d292237-Reviews-Nechako_Lodge_Aviation-Prince_George_British_Columbia.html
NECHAKO SETTLEMENT - WHAT HAPPENED?
In 1983, ALCAN starts own environmental
impact assessment
In response, DFO creates a team, to work
with ALCAN team
1985: DFO scientists say low water flows
negatively effect salmon populations
“Surprisingly”, the consultants for
ALCAN disagree
NECHAKO SETTLEMENT - WHAT HAPPENED?
1985: Ministry of Ocean and Fisheries meeting A base flow of 62.8 m3s-1, A preferred flow of 124m3s-1.
1986: Meeting of DFO with deputy minister No scientists present Base flow and preferred case.
BUT the minister takes it as the only flow needed is the base flow. Makes it the pleading case
In comparison, ALCAN proposed 19.6 m3s-1
March 1987: 4 day meeting betwen DFO / ALCAN DFO plays nice Tries to find mitigation to low flows
NECHAKO SETTLEMENT - DFO SCIENTISTS NOT HAPPY
Scientists had doubts on intents of DFO
1986: 3 scientists write a complaint on the document
Did not present variability Did not present the differences between
scientists and staff
During the court hearings, told to support minister or “take their game and play elsewhere”
Bureaucracy hampered the process
http://memegenerator.net/instance/59655101
RECOMMENDATIONS
An independent body funded by public money that does not have any political affiliation nor governmental nominations
The organization would: Produce decision tables showing a range of
ecological consequences Display variability Release the information to the public
More transparency More accountability
http://www.helenmowat.com/january-5-2014.html
Criticisms ( Healy 1997; Double day et al. 1997)
Doubleday et al. (1997 )
Stock assessment review process is more open to non DFO employees than suggested
Argue that causes of COD collapse were not misinterpreted and use CAFSACs recommendations reflected that fact
Concerning the reprimand of a DFO scientist, this was justified by Doubleday et al. (1997) by reference to DFO Media �Relations Guidelines
Healey (1997a)
argues that analysis is seriously flawed and that lack objectivity
science has relatively little to offer in those situations for which there is high uncertainty
disagrees that greater independence of science from government would reduce the incidence of such decisions and interference.
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CURRENT AFFAIRS
Nechako river:
Program in place by the Nechako Fisheries Conservation Program (DFO) to release more water in the summer to reduce water temperatures
In summer of 2009, egg retention at its second lowest level since 1988. However, confidence intervals are within normal numbers
1997: Rio Tinto Alcan applied for second tunnel for more power generation (Kemano completion project)
After pressure from First Nations / Environmental groups, the tunnel is considered backup.
2009 Fisheries and Oceans Canada published the Sustainable Fisheries Framework
November 2014 - Government announced a rebuilding plan for the Southern Newfoundlands Atlantic cod stock in NAFO Sub-Division 3Ps
CURRENT AFFAIRS
The Harper government continues to impede on science and the ability of scientists to communicate freely
Muzzling of scientists 2008 position of the National Science
Advisor eliminated 2011 Government announced 700
Environment Canada positions would be terminated
2012 Omnibus Budget Bill C-38 2013 DFO introduced a new policy
characterizing all department research as ‘confidential’
https://media.zenfs.com/en-CA/blogs/canadapolitics/A-2012-rally-against-the-federal-governments-funding-cuts-to-science.jpg
Half of federal scientists are aware of cases where the health and safety of Canadians (or environmental sustainability) has been compromised because of political interference
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Case Study: COHEN COMMISSION
2009 - Canadian government organized the
commission of inquiry into the decline of
sockeye in Fraser River, BC
Lots of media attention
2012 - Final report issued after 139 days of
hearings
Cohen made 75 recommendations
Government of Canada has not yet
responded to any of these
recommendations
Dardan Goga
COHEN COMMISSION
Dr. Kristi Miller outlined 7 controversies
1. Muzzling of government scientists
2. Any indication of disease in wild fish used by ENGO’s as “proof” of the negative impacts of salmon farms
3. Dr. Miller escorted by “body guard”
4. Can DFO effectively regulate an industry that they are simultaneously promoting?
5. Do BC salmon carry ISA virus?
6. Why don’t the molecular tests match up?
7. The CFIA PR tidehttp://www.desmog.ca/2013/02/11/federal-government-muzzles-dfo-scientists-new-policy
SUMMARY Government bureaucracy has, through selection of information or loss of information, impeded scientific research:
Examples of Cod fisheries and Nechako River settlement History shows that it can have castastrophic consequences “An environment in which information can be controlled, for whatever reason, is
not one in which the scientific process can exercise its full potential.” (Hutchings et al. 1997)
Unfortunately things have not improved in any significant way since: Cohen commission a recent example of control of information for the fisheries Control of scientific information control has been known to occur in other areas of
scientific research across Canada as well
Hopefully in future years government bureaucracy relaxes its grasp on scientists: Maybe a new government will bring a different philosophy to the availability of
information?
FURTHER INTEREST ON THE TOPIC
DFO website - http://www.dfo-mpo.gc.ca/index-eng.htm
Description of the policy framework pertaining to DFO - http://www.un.org/depts/los/general_assembly/contributions_fisheries/canada_appendices.pdf
Documentary - Salmon Confidential
A funny movie about a village of unemployed fishermen - The Grand Seduction
QUESTIONS ?
DISCUSSION QUESTIONS
1. What role should the government play in fisheries science and
management?
2. Will government research control change if a new party is elected
this year?
3. Do scientists have an ethical obligation to disclose all published
peer-reviewed material to the public?
DISCUSSION QUESTIONS
4. How do we find a balance between economic and environmental
concerns when making legislation?
5. What are some solutions for limiting government research
control?
REFERENCES
• Hutchings, J.A., C. Walters, and R.L. Haedrich. 1987. Is scientific inquiry incompatible with government information control? Canadian Journal of Aquatic Sciences 54: 1198 – 1210.
• Fisheries and Oceans Canada. 2005. Nechako Fisheries Conservation Program. Technical Data Review 1988 – 2002. Summary.
• Potyrala, M., and B. Nutton. 2011. Nechako River Chinook carcass recovery 2009. Nechako Fisheries Conservation Program Data Report No. M09-2.
• Bradford, M.J. 1993. Trends in the abundance of Chinook Salmon (Oncorhynchus tshawytscha) of the Nechako River, British Columbia. Canadian Journal of Fisheries and Aquatic Sciences 51: 965 – 973.
• Mundie, J.H. and R. Bell-Irving. 1986. Predictability of the consequences of the Kemano hydroelectric proposal for natural salmon populations. Canadian Water Resources Journal 11: 14-25
REFERENCES
Lane, D.E., and R.L. Stephenson. 2000. Institutional arrangements for fisheries: alternate structures and impediments to change. Marine Policy 24: 385-393.
Corbin, C. 2002. Silence and lies: how the industrial fishery constrained voices of ecological conservation. Canadian Journal of Communication 27: 7-32.
Kristi Miller’s Cohen Commission lecture in Cons 486
http://faculty.forestry.ubc.ca/hinch/486/2015/Lectures/Miller%20Class%20Presentation_Cohen%20Inquiry_Feb%206,%202015.pdf
DFO Website
http://www.dfo-mpo.gc.ca/index-eng.htm
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